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Fire Department Corresponding Implementation Goals Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 105 What follows is a compilation of recommendations and strategies designed to improve the efficiency and/or effectiveness of the Bozeman Fire Department. The suggestions offered by ESCi associates are derived from our analysis of the existing emergency system as detailed in Section I of this report. Recommendations and comments are based on experience with similar fire and emergency medical agencies, and categorized in accordance with the ten objectives of Section I. This is intended as a management reference to be used by the leaders of the city and fire department to aid in forthcoming planning and management activities. Because of that, the discussion and rationale behind each of the recommendations is not included here; that information may be found in the appropriate chapter of Section I as referenced below. In keeping with the advisory nature of most of these comments, none is listed in order of importance or priority. Organizational Structure on page 5 Organizational Structure on page 5 Maintenance of History, on page 7 Maintenance of History, on page 7 Mission, Vision, Strategic Planning, Goals, and Objectives, on page 11 Availability of SOGs, Rules, Regulations, and Policies, on page 12 39 Note: This position was budgeted for in the fiscal year 2006 – 07. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 106 Critical Issues, on page 13 Critical Issues, on page 13 Internal and External Communications, on page 14 Internal and External Communications, on page 14 Internal and External Communications, on page 14 Document Control and Security, on page 15 Reporting and Records, on page 16 Organizational Planning Processes, on page 19 Tactical Planning, on page 20 External Customer Planning Involvement, on page 22 Health and Safety, on page 26 Bozeman FD Fire Station 1, on page 43 40 While not done in many years—the fire chief has resolved to begin forwarding the data again this year. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 107 Bozeman FD Fire Station 2, on page 44 Support and Small Equipment, on page 46 Apparatus Maintenance, on page 47 Hose Testing, on page 48 Bozeman FD Response Performance Objective, on page 81 Commission Memorandum REPORT TO: Honorable Mayor and City Commission FROM: Chuck Winn, Fire Chief Chris Kukulski, City Manager SUBJECT: City of Bozeman Fire Protection Master Plan public hearing and adoption by resolution. MEETING DATE: November 6, 2006 BACKGROUND: At the August 14, 2006 City Commission meeting, Emergency Service Consultants Inc. presented their draft of the City of Bozeman Fire Protection Master Plan. This master plan contains a detailed analysis of Bozeman Fire Department operations and provides recommendations on several critical areas for the city to consider as it contemplates growing its fire department to meet increased demands caused by city growth. Three minor changes were made to the original draft presented to the Commission on August 14: 1. Figure 74 was titled a “criterion table to determine when a new station is needed”, but was in fact a comparison of adopted response time standards of other Montana fire departments. The correct table is included in this final draft. 2. In figure 79, the firefighters per 1,000 population for Missoula was corrected and the entire figure was updated. 3. Objective Eight, Service Delivery discusses the response time standards in NFPA 1710. A paragraph was added that recommends the city formally adopt a response time standard benchmark and adds that recommendation to the summary table of recommendations. Among the recommendations contained in the plan are detailed breakdowns of present and future service demands and proposed future fire station locations based on those projections. Certainly the costs of acquiring land, constructing fire stations, and hiring firefighters to staff those stations are significant and require thoughtful preparation as we move forward. The adoption of this plan and the direction it provides will allow us to focus our efforts on proactive planning and the development of funding and implementation strategies to ensure the Bozeman Fire Department is able to meet the fire and life-safety challenges presented by the Bozeman of today and tomorrow. RECOMMENDATION: The City Commission conduct a public hearing and pass Resolution 3972, a Resolution Adopting By Reference The 2006 Fire Protection Master Plan. FISCAL EFFECTS: There are no fiscal effects associated with adopting the Fire Protection Master Plan. Significant costs will be incurred by implementing the recommendations contained within, including the construction of new fire stations, the purchase of new apparatus, and the hiring of additional personnel to staff the stations ALTERNATIVES: As suggested by the City Commission. Respectfully submitted, _____________________________ ___________________________ Chuck Winn, Fire Chief Chris A. Kukulski, City Manager Attachments: Updated 2006 Fire Protection Master Plan Proposed Commission Resolution No. 3972 Report compiled on October, 2006 COMMISSION RESOLUTION NO. 3972 A RESOLUTION OF THE CITY COMMISSION OF THE CITY OF BOZEMAN, MONTANA, ADOPTING BY REFERENCE THE 2006 FIRE PROTECTION MASTER PLAN. WHEREAS, the City of Bozeman is a first class city; and WHEREAS, the City of Bozeman is required to provide fire protection services within its jurisdiction in accordance with MCA 7-33-4101; and WHEREAS, it is essential in providing a quality fire protection service to periodically assess the current status of fire protection resources and future expected demand for services; and WHEREAS, the City hired a consultant to work with the community and fire service professionals to identify current and future needs; and WHEREAS, the City of Bozeman has examined its current and future needs, including identifying additional capital and operational resources needed to continue to provide quality fire protection services to existing and future users; and WHEREAS, the City of Bozeman Fire Chief and the consultants provided a televised presentation of the contents of the plan to the City Commission on August 14, 2006; and WHEREAS, the draft City of Bozeman Fire Protection Master Plan has been available to the public for review since the date of the presentation; and WHEREAS, the draft City of Bozeman Fire Protection Master Plan establishes levels of service for fire protection and other related services which the City Commission wishes to adopt as formal standards for the City of Bozeman Fire Department; and WHEREAS, the National Fire Protection Association and other nationally recognized life- safety agencies recommend a six minute response time benchmark; and WHEREAS, on August 14, 2006, the Commission indicated their desire to proceed with adoption of the Fire Protection Master Plan; and WHEREAS, a public hearing by the City Commission on the adoption of the Fire Protection Master Plan was duly noticed and held on November 6, 2006; and WHEREAS, the City Commission considered all matters raised at the public hearing and concluded that all issues have been adequately addressed in the document; and NOW, THEREFORE, BE IT RESOLVED by the City Commission of the City of Bozeman, Montana, that the Fire Protection Master Plan, attached hereto as “Exhibit A”, and by this reference made a part hereof as if fully set forth herein, be adopted. PASSED AND ADOPTED by the City Commission of the City of Bozeman, Montana, at a regular session thereof held on the 6th day of November 2006. _______________________________________ JEFF KRAUSS Mayor ATTEST: ____________________________________ BRIT FONTENOT City Clerk APPROVED AS TO FORM: ___________________________________ PAUL J. LUWE City Attorney Prepared with the assistance of: Bruce Caldwell Phil Kouwe Martin Goughnour Robert McNally 25200 SW Parkway Ave. Suite 3 Wilsonville, OR 97070 503-570-7778 800-757-3724 fax: 503-570-0522 www.esci.us ©Copyright 2006, emergency Services consulting inc. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopy, recording or otherwise without the expressed written permission of Emergency Services Consulting inc. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan i Table of Contents Section I – City of Bozeman Current System Analysis................................................................... 1 Objective One - Organizational Governance ..................................................................................................1 Responsibilities and Lines of Authority............................................................................................................3 Foundational Policy .........................................................................................................................................4 Organizational Structure..................................................................................................................................5 Maintenance of History....................................................................................................................................7 Fiscal Management .........................................................................................................................................9 Objective Two – Organizational Management..............................................................................................11 Mission, Vision, Strategic Planning, Goals, and Objectives..........................................................................11 Availability of SOGs, Rules, Regulations, and Policies.................................................................................12 Critical Issues ................................................................................................................................................13 Internal and External Communications..........................................................................................................14 Document Control and Security.....................................................................................................................15 Reporting and Records..................................................................................................................................16 Objective Three – Planning for Fire and Emergency Medical Protection..................................................19 Organizational Planning Processes...............................................................................................................19 Tactical Planning ...........................................................................................................................................20 Operational Planning.....................................................................................................................................21 Master Planning.............................................................................................................................................22 External Customer Planning Involvement .....................................................................................................22 Internal Customer Planning Involvement.......................................................................................................23 Objective Four – Risk Management...............................................................................................................25 Liability Issues ...............................................................................................................................................26 Health and Safety..........................................................................................................................................26 Objective Five – Human Resource Management..........................................................................................29 Personnel Policies and Rules........................................................................................................................29 Compensation and Benefits ..........................................................................................................................29 Personnel Records........................................................................................................................................30 Disciplinary Process ......................................................................................................................................31 Counseling Services......................................................................................................................................31 Application and Recruitment Process............................................................................................................32 Ongoing Competency Evaluation..................................................................................................................33 Objective Six - Staffing....................................................................................................................................35 Administration and Support Staff...................................................................................................................35 Emergency Services Staff .............................................................................................................................37 Assignment of Responsibilities......................................................................................................................39 Objective Seven – Capital Assets and Resources.......................................................................................41 Facilities.........................................................................................................................................................41 Apparatus ......................................................................................................................................................46 Support and Small Equipment.......................................................................................................................46 Maintenance ..................................................................................................................................................47 Objective Eight – Service Delivery.................................................................................................................51 Notification System (Dispatch) ......................................................................................................................51 Facility Deployment .......................................................................................................................................52 Resource Deployment...................................................................................................................................62 Emergency Response Activity.......................................................................................................................67 Response Time Performance Objectives......................................................................................................71 Emergency Medical Event Sequence............................................................................................................75 People, Tools and Time.................................................................................................................................76 Response Performance Objectives...............................................................................................................79 Bozeman FD Response Performance Objective...........................................................................................81 Recorded Response Time Performance and Outcomes...............................................................................81 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan ii Resource Workload .......................................................................................................................................84 Incident Staffing.............................................................................................................................................86 Mutual and Automatic Aid..............................................................................................................................89 Hazardous Materials Response.....................................................................................................................89 Homeland Security Integration ......................................................................................................................90 Insurance Services Office..............................................................................................................................91 National Benchmarks and Comparables.......................................................................................................92 Objective Nine – Training................................................................................................................................95 General Training Competencies....................................................................................................................95 Training Facilities...........................................................................................................................................95 Training Staff..................................................................................................................................................96 Entry Level Training.......................................................................................................................................96 Ongoing Skills Maintenance Training............................................................................................................97 Career Development Training........................................................................................................................97 Training Program Planning............................................................................................................................98 Competency Based Training .........................................................................................................................98 Training Records and Reports.......................................................................................................................99 Objective Ten – Fire Prevention...................................................................................................................101 Background..................................................................................................................................................101 New Construction Review............................................................................................................................101 Fire Safety Inspections ................................................................................................................................102 Life and Fire Safety Education.....................................................................................................................103 Fire Investigation..........................................................................................................................................103 Incident Information Analysis.......................................................................................................................104 Bozeman FD: Summary Table Organizational Recommendations...........................................................105 Section II- System Demand Projections.......................................................................................109 Community Growth Potential .......................................................................................................................109 Current Population Information....................................................................................................................109 Census-based Growth Projections ..............................................................................................................113 Development-based Growth Projections.....................................................................................................113 Service Demand Projections .......................................................................................................................115 Community Risk Analysis.............................................................................................................................117 Section III- Future Delivery System Models.................................................................................121 Introduction ..................................................................................................................................................121 Future Deployment Recommendations.......................................................................................................123 Facilities.......................................................................................................................................................126 Short Term: One to 18 months ....................................................................................................................127 Middle Term: Eighteen Months to Five Years .............................................................................................128 Long Term: Greater than Five-Years...........................................................................................................131 Apparatus.....................................................................................................................................................134 Staffing.........................................................................................................................................................137 Projecting System Cost................................................................................................................................143 Cost Projections...........................................................................................................................................146 Appendices ....................................................................................................................................149 Appendix: A – Response Time Thresholds and Triggers..........................................................................149 Introduction ..................................................................................................................................................149 Station Siting................................................................................................................................................149 Response Failure.........................................................................................................................................152 When a New Station is Needed...................................................................................................................153 Appendix: B – Montana Comparables.........................................................................................................157 Appendix: C - Maps........................................................................................................................................163 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan iii Table of Figures Figure 1: Comparison of Resources per 1,000 Population .......................................................................................................2 Figure 2: City of Bozeman Fire Department Organizational Chart............................................................................................6 Figure 3: Bozeman FD Insurance Coverage Summary ..........................................................................................................26 Figure 4: All Personnel in Administrative/Support Personnel Functions .................................................................................36 Figure 5: Bozeman FD Administrative Support Personnel......................................................................................................36 Figure 6: Field Operations Staffing Summary.........................................................................................................................37 Figure 7: Comparison of Firefighters per 1,000 Population.....................................................................................................38 Figure 8: National Average of Firefighters On-Duty................................................................................................................39 Figure 9: Bozeman FD Facility and Condition Summary ........................................................................................................42 Figure 10: Bozeman FD Fire Station 1....................................................................................................................................43 Figure 11: Bozeman FD Fire Station 2....................................................................................................................................44 Figure 12: Bozeman FD Training Facilities.............................................................................................................................45 Figure 13: Bozeman FD Summary of Fire Apparatus Condition.............................................................................................46 Figure 14: Bozeman FD Extractor...........................................................................................................................................49 Figure 15: Bozeman FD Fire Service Area Map .....................................................................................................................53 Figure 16: Bozeman FD Current Deployment Travel Time Footprint......................................................................................55 Figure 17: Bozeman FD Current Deployment – Four-Minute Travel Polygons.......................................................................57 Figure 18: Bozeman FD Service Demand ..............................................................................................................................59 Figure 19: Bozeman FD Structural Fire Incident Locations.....................................................................................................61 Figure 20: Hydrants Located Within 1.5 mile Polygons...........................................................................................................63 Figure 21: ISO 1.5 Mile Response Areas for Engine Companies ...........................................................................................64 Figure 22: Bozeman FD Aerial Ladder Coverage at 2.5 Miles................................................................................................66 Figure 23: Bozeman FD Comparison of Incident Rates by Population...................................................................................67 Figure 24: Bozeman FD Fire per 1,000 Population.................................................................................................................68 Figure 25: Bozeman FD Workload History by Incident Type ..................................................................................................69 Figure 26: Bozeman FD Workload Trend by Incident Type ....................................................................................................69 Figure 27: Bozeman FD Workload by Time of Day.................................................................................................................70 Figure 28: Bozeman FD Workload by Day of Week................................................................................................................71 Figure 29: Bozeman FD Workload by Month of Year..............................................................................................................71 Figure 30: Fire Growth versus Reflex Time.............................................................................................................................73 Figure 31: National Data - Fire Growth to Life and Property Loss...........................................................................................75 Figure 32: Cardiac Arrest Event Sequence.............................................................................................................................76 Figure 33: Minimum Firefighting Personnel Based Upon Level of Risk ..................................................................................78 Figure 34: Bozeman FD Average Response Time Analysis by Hour of Day ..........................................................................82 Figure 35: Bozeman FD 90th Percentile Response Time Analysis by Hour of Day.................................................................83 Figure 36: Bozeman FD – Response Time Analysis by Apparatus.........................................................................................84 Figure 37: Total Response by Unit - 2003 and 2004...............................................................................................................85 Figure 38: Unit Hour Utilization for Bozeman FD – 2004 ........................................................................................................86 Figure 39: Resource and Staffing Availability Table................................................................................................................87 Figure 40: Bozeman FD Standard Response by Type of Call.................................................................................................87 Figure 41: Incident Staffing Analysis – 2004...........................................................................................................................88 Figure 42: Table of Benchmark Comparisons.........................................................................................................................93 Figure 43: Training Building and Prop.....................................................................................................................................96 Figure 44: Inspection Frequency Recommendation Table....................................................................................................102 Figure 45: City of Bozeman Population Growth History........................................................................................................109 Figure 46: City of Bozeman Population by Age.....................................................................................................................110 Figure 47: Selected Demographic Changes 1990 – 2000 ....................................................................................................110 Figure 48: City of Bozeman Housing by Occupancy.............................................................................................................111 Figure 49: Selected Housing Changes 1990 – 2000.............................................................................................................111 Figure 50: City of Bozeman Population Density....................................................................................................................112 Figure 51: Census Based Population Forecast.....................................................................................................................113 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan iv Figure 52: Development Based Population Forecast............................................................................................................ 114 Figure 53: Workload Projection by Type and Year ............................................................................................................... 115 Figure 54: Community Risk Assessment.............................................................................................................................. 118 Figure 55: Bozeman Future Land Use.................................................................................................................................. 124 Figure 56: Projected Service Demand.................................................................................................................................. 125 Figure 57: Proposed Fire Station 4....................................................................................................................................... 128 Figure 58: Proposed Fire Station 3....................................................................................................................................... 129 Figure 59: Proposed Fire Station 5....................................................................................................................................... 130 Figure 60: Proposed Fire Station 6....................................................................................................................................... 131 Figure 61: Proposed Fire Station 7....................................................................................................................................... 133 Figure 62: Proposed Facility Deployment Strategy............................................................................................................... 134 Figure 63: Truck Company Response Area Capability......................................................................................................... 136 Figure 64: Bozeman FD Short Term Staffing Assumption.................................................................................................... 138 Figure 65: Bozeman FD Firefighters Compared to Residents, Short Term 2007 ................................................................. 138 Figure 66: Comparison of Bozeman FD Minimum On-Duty Firefighters 2005 – 2007.......................................................... 139 Figure 67: Bozeman FD Middle Term Staffing Assumption.................................................................................................. 140 Figure 68: Bozeman FD Long Term Staffing Strategy.......................................................................................................... 141 Figure 69: Year 2025 Operational Staffing Assumption........................................................................................................ 141 Figure 70: Bozeman FD Year 2025 Administrative Staffing Assumption.............................................................................. 142 Figure 71: CPI-U Trend, 1996 – 2005................................................................................................................................... 144 Figure 72: City of Bozeman Forecast Market Value ............................................................................................................. 145 Figure 73: City of Bozeman - Forecast Taxable Value ......................................................................................................... 146 Figure 74: Cost Projections for Fire Stations and Personnel................................................................................................ 148 Figure 75: Criterion Table to Determine When a New Station is Needed............................................................................. 156 Figure 76: Population Served by Agency.............................................................................................................................. 157 Figure 77: Area Served by Fire Department......................................................................................................................... 158 Figure 78: Montana Communities Comparison – Resources per 1,000 Population ............................................................. 159 Figure 79: Comparison of Firefighters per 1,000 population................................................................................................. 160 Figure 80: Comparison of Minimum On – Duty Staffing per 1,000 Population...................................................................... 161 Figure 81: Total Calls for Service – per 1,000 Population..................................................................................................... 161 Figure 82: Response Time Standard.................................................................................................................................... 162